The Kansas 
Educational Commission. 



Bulletin No. 1. 



Recommendations as to Needed Legislation for the 

Public Schools of Kansas, Proposed by the 

Educational Commission. 



December, 1908. 




STATE PRINTING OFFICE, 
TOPEKA, 1908. 

3359 



Monograph 



The Kansas 
Educational Commission. 

Bulletin No. 1. 



Recommendations as to Needed Legislation for the 

Public Schools of Kansas, Proposed by the 

Educational Commission. 



December, 1908. 




STATE PRINTING OFFICE, 
TOPEKA, 1908. 

3359 



"L^f^Jr 



f? 






Kansas Educational Commission. 



E. T. Fairchild, Chairman Topeka. 

State Superintendent Public Instruction. 

Superintendent L. A. Lowther, Secretary Emporia. 

Hon. J. W. Gleed Topeka. 

Superintendent R. F. Knight Wichita. 

Superintendent W. D. Ross Peabody. 

Principal W. S. Pate Cherokee. 

County Superintendent A. J. Stanley Lincoln. 






Letter of Transmittal 



State of Kansas, 
Department of Public Instruction. 

Topeka, Kan., December 9, 1908. 

To Hon. E. W. Hoch, Governor: 

Sir — We, the Educational Commission, appointed by you to 
investigate and recommend such legislation as seems desirable 
for the betterment of our schools, submit herewith a report 
setting forth the results of our investigations, together with 
our recommendations. 

Very respectfully, 

E. T. Fairchild, Chairman, 

State Superintendent Public Instruction. 

L. A. Lowther, Secretary, Emporia. 

J. W. Gleed, Topeka. 

R. F. Knight, Wichita. 

W. D. Ross, Peabody. 

W. S. Pate, Cherokee. 

A. J. Stanley, Lincoln. 

(3) 



Contents. 



page 

Introduction 5 

1. An Educational Commission to be Provided for by Legislative 

Resolution 7 

2. A Longer Term for Rural Schools, and State Aid for Weak 

Districts 8 

3. Consolidation of Schools 9 

4. Special Aid for Certain Districts 10 

5. Inspectors of Schools 10 

6. Certification of Teachers 12 

7. A Larger Unit of School Organization 18 

8. Employment of Teachers for Longer Periods 23 

9. A Change in the Date of Annual School Meetings 23 

10. Railroad Taxation 25 

11. Escheats to the School-fund 26 

12. The Barnes Law 26 

13. Compulsory Education 27 

14. Normal Courses in High Schools 28 

15. Agriculture in High Schools 29 

16. Sanitary Inspection of Schools 29 

17. Regulations Relative to the Construction of School Buildings. . . 30 

18. Fire Drills 30 

19. County Diploma Examination 32 

20. Clerks for County Superintendents, and Closer Supervision of 

Country Schools 33 

21. School Libraries and Equipment 35 

22. Take the Office of County Superintendent Out of Politics 36 

23. County Superintendents' Annual Meeting 39 

24. A Uniform Law Relating to Size and Organization of Boards of 

Education 40 

25. School Text-books, Uniformity 41 

26. Miscellaneous 45 

(4) 



Introduction. 



T^HILE we are justly proud of the educational system of this 
state, and feel that the schools of Kansas compare favor- 
ably with those of any other state, nevertheless a study of the 
school laws reveals many defects. At the same time, the needs 
of our rapidly developing system of schools are such as to de- 
mand new legislation on many important subjects. Therefore, 
at the meeting of the State Teachers' Association, December, 
1907, the following resolution was adopted : 

"Resolved, That the State Teachers' Association of Kansas 
hereby requests the governor to appoint a commission of seven 
members, at least five of whom shall be actively engaged in the 
work of public education in the state, to investigate carefully 
present educational conditions and to recommend such legisla- 
tion as in its judgment is most needed. Be it further 

"Resolved, That $300 of association funds be and are hereby 
appropriated to meet the necessary expenses of said commis- 
sion in performing its duties." 

In compliance with this request, Governor Hoch, in Febru- 
ary, 1908, appointed the following Commission: E. T. Fair- 
child, state superintendent of public instruction, chairman ex 
officio; Supt. L. A. Lowther, Emporia; Hon. J. W. Gleed, To- 
peka ; Supt. R. F. Knight, Wichita ; Supt. W. D. Ross, Peabody ; 
Prin. W. S. Pate, Cherokee; and Co. Supt. A. J. Stanley, Lin- 
coln. 

Kansas is not alone in this attempt to study carefully the 
needs of her schools with a view to recommending necessary 
legislation. The following states have educational commis- 
sions, in most instances appointed in compliance with a resolu- 
tion of the legislatures: Illinois, Iowa, Pennsylvania, Wash- 
ington, Kentucky and Kansas. 

As intimated, the school laws of this state are, indeed, a sort 
of patchwork, presenting, as they do, lack of harmony and con- 
tinuity. Defects of this character are so numerous, and incon- 
sistencies, incongruities and obscurities in our school laws are 
so evident, that the Commission soon saw that to attempt to 

(5) 



6 Educational Commission Bulletin. 

remedy these evils is a work requiring more time and technical 
knowledge than it could bestow in the time allotted. 

The following recommendations represent only a part of the 
problems studied by this Commission. Furthermore, there 
are many other subjects of vast interest to the schools of the 
state that it is felt require further study and more elaborate 
investigation before a suitable report can be made. 






Recommendations. 



1. AN EDUCATIONAL COMMISSION TO BE PROVIDED FOR 
BY LEGISLATIVE RESOLUTION. 

The subject of paramount interest in Kansas is the welfare 
of the 508,000 boys and girls of school age. To provide fully 
for the educational interests of these youth is the duty of the 
state. To accomplish this most effectively the Commission 
earnestly recommends that the legislature of 1909 adopt a reso- 
lution providing for the appointment of an Educational Com- 
mission to codify the school laws and to recommend such 
further legislation as may seem best for the interests of our 
public-school system. This Commission should study other 
school systems and compare ours with the best in the country, 
so that full information may be obtained as to all classes of 
schools, and should suggest and submit to the succeeding leg- 
islature laws to unify our school system and to bring our pub- 
lic schools up to the highest standard of efficiency. 

Such a Commission will necessarily need funds with which to 
pursue its investigations, and to secure legal assistance in the 
codification of the school laws and the drafting of suitable bills. 
It is therefore hoped that the legislature will also make a gener- 
ous appropriation for this purpose. 

In this connection, it may be interesting to learn of the unex- 
ampled success of the educational commission appointed in 
West Virginia in 1906. The commission proceeded to study 
thoroughly the needs of the schools of that state and to codify 
the laws, with the result that the entire body of school laws of 
West Virginia were embodied in one act, and many important 
recommendations for further legislation were made. At a 
special session of the legislature in 1908 the recommendations 
of this commission were adopted with almost no changes, and 
it is now conceded that West Virginia has an effective and up- 
to-date code of school laws. 

It seems apparent, then, that a commission could perform 
a most important service to the state by the codification of the 
school laws, and by and through a careful investigation of the 

(7) 



8 Educational Commission Bulletin. 

proposition of state- wide aid for our public schools ; a more just 
and equable distribution of taxes upon public utilities ; a care- 
ful study of the best basis of the unit of school organization, 
whether such unit should consist of a county, township or dis- 
trict ; and the careful study of the proposition of a permanent 
state tax for the support and maintenance of the higher educa- 
tional institutions. These represent only a portion of the prob- 
lems affecting our schools that could be studied with great 
profit both to the schools and the state. 

2. A LONGER TERM FOR RURAL SCHOOLS, AND STATE AID 

FOR WEAK DISTRICTS. 

According to the returns for 1907 the average length of the 
school term in the rural schools for the state was a little under 
six and one-fourth months. This means that while many 
schools have a longer term than the average there are still a 
great many that fall below. Indeed, the school term in the ru- 
ral schools ranges from four to eight months. The shorter 
term, in some instances, is due to the fact that the maximum 
levy does not raise sufficient funds to maintain a longer term of 
school. In other cases, the short term is undoubtedly due to a 
desire to economize, or because of the refusal on the part of the 
patrons to make a sufficient levy. 

Every consideration of the needs of the rural schools seems 
to indicate that there should be a minimum term of seven 
months. This is still two months short of the amount of school- 
ing afforded in the average town or city. When we consider the 
early age at which many of the youth of this state leave school, 
the argument for a longer term is apparent. 

The Course of Study for the common schools of the state 
prepared by the State Board of Education is now in use in 
practically every rural school. This Course of Study is based 
upon nine years* work of seven months each, so that such 
schools as have a shorter term than seven months find it ex- 
tremely difficult to reap the advantages of such systematic and 
uniform work as is outlined in the Course of Study named. 

It does not follow that because a district is small, or the value 
of the real estate is low, that the duty of the state to the child 
is thereby in the least diminished, or that the child itself 
should have poorer educational advantages than the children in 
more favored districts. 

It is recommended, therefore, by the Commission, that such 



Educational Commission Bulletin. 9 

legislation be had as shall make seven months the minimum 
length of term for any public school in the state. 

It is further recommended that a measure be enacted into 
law providing that when any district shall find itself unable to 
maintain a seven months' term of school after levying the maxi- 
mum amount permitted by law, it shall be entitled to a suffi- 
cient amount of state and county aid to enable it to continue its 
school for the necessary seven months. It is recommended that 
seventy-five per cent, of this aid shall come from the state and 
twenty-five per cent, from the county. Somewhat careful com- 
putations seem to indicate that such an appropriation, either 
on the part of the state or the county, will not necessarily be a 
very large one. 

3. CONSOLIDATION OF SCHOOLS. 

The important subject of consolidation of weak and small 
districts has been thoroughly discussed in a bulletin issued by 
the state superintendent of public instruction. This bulletin 
is available to all on application, and the subject of consolida- 
tion, therefore, will not be discussed at length here. 

However, the following facts selected from the above-men- 
tioned bulletin may not be out of place : 

"Of the 8389 districts there are 78 having an enrolment of 
five or less, 474 between five and ten, 1049 between ten and 
fifteen, and 1316 between fifteen and twenty — a total of 2917 
with an enrolment of twenty or less. More than one-third of 
all the districts have an enrolment of twenty or less. 

"In the matter of average daily attendance there are 286 
schools having five pupils or less, 1343 having between five and 
ten pupils, 1889 between ten and fifteen, and 1808 between 
fifteen and twenty; or a total of 5326 schools in this state 
having a daily average attendance of twenty or less ; or 62 per 
cent, of the whole. In addition to all this there are 170 dis- 
tricts not maintaining schools, presumably because the schools 
are so small that they find it cheaper to send to other districts. 

"In these small districts a cost of $50 to $100 per pupil per 
year based on the average daily attendance is not uncommon in 
almost any county in the state. The pupils of those schools 
could be educated at a much lower expense per capita in a con- 
solidated school that would be far more efficient than the 
small school. 

"When we reflect that it costs as much to support a small 
school as one of thirty or more pupils, we catch some idea of 
the tremendous per capita cost of the Kansas rural school. 
Figures from the report of the superintendent of public in- 
struction of Indiana for 1900 show that the cost of elementary 



10 Educational Commission Bulletin. 

education in the country in that state is over forty-eight per 
cent, higher than the cost of education in the city, including 
the high-school course. 

"A similar difference exists between the cost of maintaining 
the grades in the city schools and the cost of maintaining the 
rural school. In the one-teacher schools of Kansas the cost 
per pupil per month, based on the average daily attendance, is 
$3.62. 

"These small schools, then, of which we have 5326, cost 
greatly more per capita than our best and most highly organ- 
ized city schools, including the high schools." 

The law as it now stands on our statute-books is fairly sat- 
isfactory, and with some few changes it is believed that much 
can be accomplished in the way of centralization of schools. 

It is the belief of this Commission that no other plan look- 
ing toward the betterment of our rural schools offers such ad- 
vantages or promises such large returns as the principle of con- 
solidation, and the attention of the members of the legislature 
is particularly invited to the consideration of this subject. 

Certain slight changes in the present law simplifying the 
steps necessary to consolidation are essential. 

4. SPECIAL AID FOR CERTAIN DISTRICTS. 

Believing firmly that the consolidation of many of the weak 
districts in this state is the only solution of the problem "How 
to build up and strengthen our rural schools," and to afford 
ample provision for the training of the youth, the Commission 
advises that whenever two or more districts vote to consolidate,, 
the consolidated district shall, upon complying with certain con- 
ditions, receive state aid to the amount of seventy-five dollars, 
annually. 

Since consolidation is impracticable in certain weak districts, 
it is further advised that whenever a district meeting shall vote 
to have no school and provide transportation and tuition for 
all persons of school age who may attend a graded school, such 
district shall receive special aid in the sum of seventy-five dol- 
lars annually, upon complying with certain conditions. 

5. INSPECTORS OF SCHOOLS. 

Perhaps no subject submitted for the consideration of the 
members of the legislature and the patrons of our public 
schools is of more importance than that of proper and efficient 
inspection of schools. Under our present system county super- 
intendents rarely serve more than four years ; so that, no mat- 



Educational Commission Bulletin. 11 

ter how efficient a superintendent may be, there are every two 
years a goodly number of superintendents who come to this im- 
portant work without any experience whatsoever. At the re- 
cent election forty-five new superintendents were elected to 
take charge of the schools in their several counties in May next. 
Again, for geographical and other reasons, the county superin- 
tendent comes but little in touch with his fellow superintend- 
ents. Barring an annual meeting, he has no means of learning 
of the excellent things accomplished by other superintendents, 
and is in touch with the state superintendent of education only 
so far as correspondence makes it possible. 

Again, there is no one in the state, other than the county 
superintendent, whose duty it is to visit the country schools, 
examine into their progress, or to make any report as to actual 
conditions to the state superintendent of public instruction. 

It is believed that the appointment of an inspector of common 
schools, whose duty it should be to visit constantly the various 
county superintendents, to inquire carefully into their plans 
and modes of supervision, and to bring timely advice and help 
to the inexperienced or weak superintendent, would result in 
great good. Such an officer could learn of the strong superin- 
tendent the things that are producing good results, and could 
carry a message to those less fortunate in the administration 
of their duties. He should also go out into the country schools 
themselves as far as possible, and learn at first hand the condi- 
tions that prevail. 

Under the subject of certification, treated of elsewhere in 
this bulletin, it will be noted that it is recommended that the 
subject of elementary agriculture be made a requirement for a 
second-grade certificate. The inspector of schools would be an 
invaluable aid in bringing about the introduction of this im- 
portant subject. We therefore earnestly recommend the enact- 
ment of a law that shall provide for the appointment of such 
an officer by the state superintendent of public instruction. 

We also earnestly recommend that an inspector be appointed 
whose duty it shall' be to visit the village and city schools of the 
state, paying particular attention to the work of the grades, 
and of the general Course of Study and Normal Course of 
Study in the high schools. 

These two officers, if provided for by statute, would undoubt- 
edly mark an epoch in the educational progress of this state. 
The work of the University inspector of high schools has more 



12 Educational Commission Bulletin. 

than met the expectations of every one. The impetus that has 
been given to high-school work, the building up and strengthen- 
ing of public sentiment in favor of high schools, and the general 
efficiency and enthusiasm of the high-school teachers them- 
selves, is abundant testimony as to the desirability of such an 
officer. However, there is no one whose duty it is to examine 
into the kind and character of grade work done, or to offer ad- 
vice or make reports. Neither is there any one whose duty it 
is to examine into the kind and character of work accomplished 
by the general courses or normal courses in our high schools. 

Since but a small per cent, of the members of the high schools 
of this state ever go to college, it would seem that every effort 
should be made to strengthen that department of the high 
school that has to do with that ninety per cent, or more whose 
school days end with the high school. 

Under the law, the State Board of Education has developed 
and caused to be published a Course of Study for the common 
schools, another Course of Study for cities of the third class, 
and still another course for our high schools. With the pro- 
posed inspectors these courses could be at once rendered ef- 
fective, and it would be part of the duty of such officers to make 
careful inquiry in every place visited and see that the recom- 
mendations of the State Board of Education were carried into 
effect. Frequent visits of school men of recognized ability, who 
kindly offer constructive criticism, cannot fail to be of value 
even to the most successful school. State inspectors are mis- 
sionaries of encouragement and good cheer, who bring to each 
school the best they can find and who fill teachers with inspira- 
tion and resolution. Various states have inspectors for their 
schools, and the testimony is unanimous that it has resulted in 
the greatest good to the school work. 

Following is a list of a few of the states in which inspectors 
of schools are provided: Minnesota, Oklahoma, Missouri, 
Nebraska, Massachusetts, Virginia, Washington and Wis- 
consin. 

6. CERTIFICATION OF TEACHERS. 

No subject comes nearer the every-day work of the school 
than does that of the certification of teachers. The friends of 
education have long felt that the time has come for taking an 
advanced step looking toward better preparation of teachers, 
and, as a result, better schools. This feeling has been intensi- 



Educational Commission Bulletin. 13 

fied during the past few years by the action of a number of 
other states. The course of Indiana will serve to illustrate this 
tendency. A study of the school laws of that state shows that 
almost every session of the legislature for a number of years 
has passed acts increasing the requirements for teachers' cer- 
tificates, as well as strengthening their system in other ways. 
Their latest law upon the subject is one which went into effect 
a few months ago, requiring each applicant to be a graduate 
of a four-years high-school course, and, in addition, to have 
had at least twelve weeks of normal training. To prevent in- 
justice to teachers who are already successfully engaged in the 
work some exceptions are made, but even these persons are 
barred from the highest salaries until they remove their educa- 
tional deficiencies. 

New York has gone even so far as to require all certificates 
issued after April 1, 1907, to be of state-wide application, and 
requiring about the same educational qualifications that Kansas 
demands for the different kinds of state certificates. In order 
to prevent a shortage of teachers, as well as to remove any 
charge of injustice to successful teachers holding county cer- 
tificates, notice was given six or eight years in advance of the 
proposed change. Illinois and Iowa have also recently made 
some fundamental readjustments, the latter making all cer- 
tificates in force throughout the state, though not going quite 
so far in her changes as the older state of New York has done. 
West Virginia, Montana, California, Kentucky and Pennsyl- 
vania are other states which have been giving attention to this 
subject for the past few years. They all serve to illustrate the 
general tendency to place our children under the care of per- 
sons who have made special preparation for the duties and re- 
sponsibilities of a teacher. 

Believing that Kansas should be abreast of the times in edu- 
cational matters, the Commission, after correspondence with 
school people both in Kansas and other states, have decided 
upon the following recommendations : 

CLASSES OF CERTIFICATES. 

There shall be two classes of certificates — county and sec- 
ondary (high school) certificates. 

County certificates shall be of three grades — third, second 
and first; to remain in force for the periods of one, two and 
three years, respectively. 



14 Educational Commission Bulletin. 

REQUIREMENTS, THIRD GRADE. 

Age. — Eighteen years; but graduates of a standard four 
years high-school course, or its equivalent, may receive a cer- 
tificate at sixteen, on passing a satisfactory examination. 

Term. — One year. 

Number. — Not more than three, if applicant has taught five 
months. 

Examination. — An average grade of seventy-five per cent., 
and no grade below sixty per cent., in the following branches : 
Orthography, reading, writing, English grammar, geography, 
arithmetic, United States history, government of United States, 
physiology, and theory and practice of teaching. 

REQUIREMENTS, SECOND GRADE. 

Age. — Nineteen years. 

Experience. — Seven months. 

Examination. — An average grade of eighty per cent., and no 
grade below sixty per cent., in all studies required for a third- 
grade certificate, and in addition, English and American litera- 
ture; and after May 1, 1911, elements of agriculture and prob- 
ably home economics. 

REQUIREMENTS, FIRST GRADE. 

Age. — Twenty-one years. 

Experience. — Twenty-one months. 

Examination. — An average grade of ninety per cent, or over, 
and no grade below seventy-five per cent., in all the subjects 
required for a second-grade certificate, and algebra and general 
history in addition. 

SPECIAL PROVISIONS. 

A first-grade certificate may be renewed upon payment of 
one dollar fee, if it is shown that the holder has attended at 
least ninety per cent, of the time of at least one county insti- 
tute, or school of at least equal rank, during the life of the cer- 
tificate ; has done such professional work as the county super- 
intendent requires, and has been teaching at least two years 
of the time. 

A holder of an unexpired second-grade certificate, who has 
taught twenty-one months, may retain any grade of ninety 
per cent, or over upon his second grade to apply upon require- 
ments for a first-grade certificate. Professional certificates 
now in force will retain their renewal privileges, but no more 
professional certificates will be issued. 



Educational Commission Bulletin. 15 

The Commission recommends that after May 1, 1911, no per- 
son be granted a certificate who has not completed at least one 
year of work in an accredited high school, or its equivalent, and 
after May 1, 1913, two years' high-school work, or its equiva- 
lent, shall be required ; exception being made in the case of any 
one who has taught at least six months before May 1, 1910. 

It is also recommended that the same questions used in the 
county examinations be used in cities of the first or second class 
for teachers in the grades, but that any board of education may 
require an applicant to be examined in such other studies as 
it may direct. 

To those familiar with the present system of certification it 
will be noted that the chief differences of the proposed plan 
are as follows : 

1. Number of third-grade certificates that may be issued to 
the same individual is limited to three. 

2. Algebra is no longer a requirement for a second-grade 
certificate, but is included in the list of requirements for a 
first-grade, while English literature has been placed in the re- 
quirements for a second-grade. This has been done for the 
reason that it would seem that every teacher should have at 
least a speaking acquaintance with the standard literature of 
his mother tongue. To even teach reading successfully one 
needs a wide and sympathetic knowledge of good literature and 
of the best authors. Certainly no subject in the entire list of 
school studies is of more importance, nor does any part of the 
school work leave a more lasting and permanent effect upon the 
child for good than the habit of reading good books. The Com- 
mission does not contemplate that this requirement as to En- 
glish literature should be a demand for a philosophic and his- 
torical knowledge of literature as such, but it is thought that 
the teachers of the children should be familiar with the or- 
dinary classics of our language. Until 1911 then, the recom- 
mendation as to second-grade certificates includes but one addi- 
tional subject over that of the third grade. 

ELEMENTARY AGRICULTURE. 

Kansas is essentially an agricultural state. Her wealth and 
prosperity in the future, as well as in the past, depend upon 
the successful tilling of the soil and the intelligent development 
of the farm activities. 

The excellent results of manual training and the teaching 



16 Educational Commission Bulletin. 

of domestic science in our city schools clearly indicate the de- 
sirability of the extension of these and kindred lines of work. 
The Commission has no hesitancy, therefore, in recommending 
that so far as possible such training in elementary agriculture 
and home economics as can be reasonably afforded by our 
schools should be introduced. The term "home economics" is 
intended to include domestic science and domestic art. 

The Commission therefore most earnestly recommends that 
after 1911 all applicants for certificates of the class mentioned 
above shall take examinations in elementary agriculture or 
home economics, or both. 

A first-grade certificate, as shown, includes all the require- 
ments for a third- and second-grade certificate, plus algebra 
and general history. It will be noted also that a provision for 
renewal is made. 

SECONDARY (HIGH SCHOOL) CERTIFICATES. 

Under existing laws, each board of education of cities of the 
first and second class is permitted to establish local examining 
boards for the purpose of examining and certificating teachers 
in their schools. Under the provisions of the law great latitude 
is afforded these local boards of examiners and material differ- 
ences as to requirements prevail in the different cities of the 
state. Because of investigations conducted by this Commis- 
sion, and because of recommendations from school authorities 
of cities of the first and second class, the Commission recom- 
mends that the law empowering boards of education to estab- 
lish local examining boards and issue certificates be repealed, 
and suggests that in lieu thereof the following provisions be 
enacted into law: 

All applicants for positions in the high schools of cities of 
the first, second or third class in this state, who are not the 
holders of state certificates, shall secure, by an examination, 
certificates under the following conditions : 

Classes. — There shall be two classes of certificates: (1) A 
limited high-school certificate; (2) a regular high-school cer- 
tificate. 

(a) A limited high-school certificate. 

1. Validity. — Good for one year in any high school in the 
state. Issued by the State Board of Education. Renewable 
for two years at the option of the State Board of Education 
on satisfactory evidence of successful teaching and professional 
progress. 



Educational Commission Bulletin, 17 

2. Requirements. — (1) Graduation from an accredited high 
school, or the completion of an equivalent course, and a cer- 
tificate showing at least one year's successful work in a recog- 
nized higher institution; (2) a successful examination in En- 
glish, the principles and methods of teaching, and three high- 
school subjects — one major and two minor — chosen from a list 
of subjects prepared by the State Board of Education. 

(b) A regular high-school certificate. 

1. Validity. — Good for three years in any high school of the 
state. 

2. Requirements. — (1) Graduation from an accredited high 
school, or the completion of an equivalent course, and a certifi- 
cate showing the completion of at least two years of successful 
work in any recognized higher institution of learning; (2) an 
examination in English, the principles and methods of teaching, 
and three other subjects — one major and two minor- — chosen 
from a list prepared by the State Board of Education; (3) one 
year of successful experience in a recognized high school. Pro- 
vided, that applicants for this certificate who have held the 
limited high-school certificate may carry over from said cer- 
tificate all grades of ninety per cent, or more and have the same 
entered on the regular certificate in lieu of examination. 

ADDITIONAL PROVISIONS. 

1. Renewal. — This certificate may be renewed successively 
on evidence of successful teaching and professional growth sat- 
isfactory to the State Board of Education. 

2. Nothing in this act is to interfere with state certificates 
or diplomas issued by the University, State Normal or ac- 
credited colleges which are recognized by law as valid certifi- 
cates. 

3. High-school certificates issued by boards of education of 
cities of the first and second class, and now in force, may be ex- 
changed for a certificate of equal rank under the new law ; that 
is to say, a teacher who holds a certificate for three or more 
years, or unlimited as to time, and who has taught at least 
three years in an accredited high school, shall receive in ex- 
change the regular certificate; all others shall receive the lim- 
ited certificate. 

GENERAL PROVISIONS. 

Under the proposed plan all questions shall be prepared by 
the State Board of Education, and the manuscripts of appli- 



18 Educational Commission Bulletin. 

cants are to be sent to the State Board, graded by them, and, if 
successful, the applicant shall receive a certificate issued by the 
State Board. These examinations shall be held at such times 
as are designated by the State Board, at the county-seat of each 
county ; the examination to be in charge of a local board of ex- 
aminers, consisting of the county superintendent as chairman 
and the superintendents of the two largest towns in the county. 

7. A LARGER UNIT OF SCHOOL ORGANIZATION. 

As indicated in another portion of this bulletin, a subject 
that may well invite the attention of an Educational Commis- 
sion, such as it is hoped the legislature will provide for, is that 
of a unit of school organization. The units now in use in all 
parts of the Union are of three kinds — the district, the town- 
ship and the county. The earliest system, and perhaps the one 
in greatest use to-day, is the first mentioned. This system has 
as its chief argument its democratic nature. The district has 
been called "probably the most communistic as well as demo- 
cratic feature of our political institutions." 

Another argument in favor of the district system is that 
great results have been achieved under it. This, it may be 
said, is the universal and inevitable argument of the conserva- 
tive. When a change in the form of government of any institu- 
tion of long standing is suggested, the conservative always 
magnify the benefits from the old form and argue from this 
the necessity of its continuance. A few of the arguments that 
may be urged against the district system are : 

The great number of school officers required to administer 
school affairs; the consequent unnecessary expense, and the 
great lack of unity or uniformity in the end sought and the 
means applied. Under the district system, as exemplified in 
Kansas, between 25,000 and 28,000 school officers are required ; 
this army to select and direct the energies of 12,000 teachers. 
This system, which, perhaps, at one time in the early history of 
the country and of the several states, served the purpose well, 
is now entirely out of harmony with the general plan of organi- 
zation and classification so evident in the administration of the 
government, the state, and of the business enterprises of the 
country. The same argument that is being advanced for the 
consolidation of the various boards of the state into single gov- 
erning powers can with even greater force be made to apply to 
the control of our schools and school systems. 



Educational Commission Bulletin. 19 

"The school has long ceased to be an institution of merely 
local interest. The community, like the individual, does not 
exist for itself alone. It is a part of a larger whole and the 
interests of the larger whole should be the essential considera- 
tion so far as educational affairs are concerned. The people of 
the state should control the schools of the state. It is not a 
matter of indiif erence to one community that the schools of an- 
other community are of low grade any more than it is a matter 
of indifference to one farmer that another farmer neglects his 
farm and allows it to grow up in weeds. For the good of all, all 
schools should be good. But since wealth is unequally distribu- 
ted there must be, under the district system, great inequality 
in the educational opportunities of the children of different dis- 
tricts — good schoolhouses, good teachers and long terms in one 
district, unsuitable houses, poor teachers and short terms in 
another. This tends directly towards the stratification of so- 
ciety in classes and is, therefore, from this point of view, in the 
highest degree undemocratic. For this reason, if for no other, 
the highly developed school system is practically impossible 
under district organization. Whatever may be said, then, for 
that form of organization in regard to its past benefits and 
adaptation, it is no longer justified either on political or social 
grounds, and certainly it is to be condemned from the stand- 
point of almost every pedagogical principle. It must, there- 
fore, in the different states, gradually but surely give way to 
a more effective scheme of authoritative and administrative 
school organization. It should give place at once [in Kansas] 
to a system that will more nearly equalize the educational op- 
portunities of the children of the state. There is no justifica- 
tion for the condition wherein the accident of a child's birth 
shall determine the kind of education he shall receive. The 
good of the state requires that every child, no matter where it 
is born, shall have an opportunity far better than some of the 
districts of the state afford for at least a common-school educa- 
tion." 

Every educational authority unites in the verdict that the 
larger the unit of school organization the more efficient and the 
more perfect is the administration of school affairs. The Edu- 
cational Commission of Illinois has made a particular and an 
exhaustive study of this subject, and through the courtesy of 
its sercetary we quote somewhat freely as to certain conclusions 
arrived at by the Educational Commission. The township sys- 
tem makes the township the unit of school government. A 
single board has control of all the elementary schools of the 
township, and also of the high school, if there should be one. 
The township system means, or is intended to mean, the sys- 
tematic organization of the schools of a township under a single 



20 Educational Commission Bulletin. 

authority. This system is general in Maine, New Hampshire, 
Vermont, Massachusetts, Rhode Island, New Jersey, Pennsyl- 
vania, Ohio and Indiana. It is permissive in a number of other 
states. In Massachusetts the school committee consists of three 
persons, or a multiple of three. Women are eligible to the 
office. This committee has general charge and superintendence 
of all public schools within its jurisdiction. It has full powers 
in regard to the employment and dismissal of teachers and their 
tenure of office. It purchases, at the expense of the township, 
the text-books and other school supplies. It also visits schools 
under its charge. The following are some of the reasons and 
arguments set forth by the Illinois Educational Commission : 

"THE SUPERIORITY OF TOWNSHIP ORGANIZATION. 

"Let us now turn our attention to the township system. 
John Fiske said that the township system of political govern- 
ment is "the kind of government the people are sure to prefer 
when they have once tried it under favorable conditions." The 
same thing may perhaps be truthfully said of township school 
organization. There has been no reversion to the district sys- 
tem in any place after the township system has been thoroughly 
tried. The present state commissioner of common schools of 
Ohio, in speaking in his report of 1905 in regard to the merits 
of the system, says : "The present law makes the township the 
unit and gives the board of education an opportunity to provide 
the best and most efficient system of schools for the township as 
a whole. I believe a return to the subdistrict plan would be a 
long step backward in our educational work." We have failed 
to find a single authoritative opinion unfavorable to the town- 
ship system. The committee on state school systems appointed 
by the National Education Assaciation reported that "the sub- 
stitution of the township for the district as the unit of organi- 
zation is absolutely essential to the highest good of the un- 
graded schools." The committee sent out a circular letter to 
the superintendents of the various states, and in its report it 
quotes replies from thirteen of these school officers strongly 
favoring the township as the unit of organization, and says 
that "with but few exceptions" the judgment of all the superin- 
tendents from whom replies were received is the same. The 
superintendent of Pennsylvania says, "We prefer the township 
organization to the district and county organization" ; and the 
superintendent of Indiana uses almost the same language as 
that previously quoted from the commissioner of Ohio — "We 
. . . should consider it taking a long step backward to drop 
the township and take up the district system again." The 
superintendents of states not under district organization ex- 
pressed the opinion that the substitution of the township for the 
district as the unit of the system would result in the increased 



Educational Commission Bulletin. 21 

efficiency of the common schools. The committee on rural 
schools appointed by the National Educational Association in 
1895 presented its report in 1897. For the preparation of their 
report four subcommittees were appointed. One of these sub- 
committees devoted some space to the enforcement of the 
proposition that "the township unit system is far superior to 
the district system, and should be substituted, if practicable, 
for that system wherever it exists." And the general com- 
mittee reported as the result of its investigation that "for pur- 
poses of organization, maintenance or supervision nothing 
should be recognized as the unit smaller than the township or 
the county ; the school district is the most undesirable unit pos- 
sible." This, we believe, is the conclusion to which any one will 
arrive who will give the subject careful study. 

"ARGUMENTS IN FAVOR OF THE TOWNSHIP SYSTEM. 

"The various arguments advanced to prove the superiority 
of the township system of school organization over the district 
system may be classified and arranged under three general 
propositions. First, the township system is more economical. 
Second, the township system tends toward a more equitable 
provision of educational opportunities for the children of the 
township, and, third, the township is more conducive to the 
general improvement of the schools. Under the first proposi- 
tion the following arguments may be included : ( 1 ) It is finan- 
cially less expensive than the district system, for the same 
reasons that a large business is relatively less expensive than 
a small business. (2) It greatly reduces the number of school 
officials. (3) It tends to the discontinuance of schools that 
have become too small to be operated efficiently, and thus tends 
to diminish the expense of school maintenance. (4) It pre- 
vents the unnecessary duplication of school facilities, including 
the building of schoolhouses. (5) It relieves the county super- 
intendent of a large amount of clerical work' and thus econo- 
mizes energy which may be devoted to school supervision. 
(6) It prevents the wear and tear of petty jealousies, strife 
and contention between districts. There would be no more dis- 
putes about district boundaries. (7) It would allow children 
to attend the school most convenient. (8) It would establish 
a uniform rate of taxation throughout the township, and thus 
facilitate the levying and collecting of taxes. (9) It would 
economize effort in the matter of securing accurate school sta- 
tistics. (10) It would lessen the number and cost of elections. 

"Under the proposition in regard to a more equitable distri- 
bution of school opportunities the following arguments may be 
grouped: (1) As it would equalize the burden of taxation, it 
would render it possible to distribute school funds in inverse 
ratio to the wealth of the township, thus giving to the poorer 
districts the wealth to equip and support a good school. A few 
districts in a township now reap practically all the advantage of 
the railroad taxes levied within the townships. (2) It would 



22 Educational Commission Bulletin. 

tend to equality of school provisions in respect to schoolhouses, 
school-grounds, apparatus, length of school terms and the 
ability and character of the teachers. (3) Since the township 
system tends to the employment of teachers for longer terms 
it will restrict in a considerable degree the evils that flow from 
frequent changes of teachers. 

"Closely related to these arguments are those which fall un- 
der the proposition in regard to the educational improvements 
that follow the adoption of the township system. These are: 
(1) The number of schools being reduced and the number of 
pupils being increased under the township system there would 
be better classification, grading and teaching and an increasing 
interest and enthusiasm on the part of the pupils. (2) The 
township system is the only means by which we can hope to 
attain the township supervision which is essential to the high- 
est school efficiency. (3) The township system makes possible 
a complete system of township schools, including both ele- 
mentary and advanced. (4) In all probability more inter- 
ested school officers would be elected." 

It is not the intention to develop all the arguments for a 
larger unit of organization in this bulletin, but it is hoped that 
some of the things here said may prove of sufficient interest to 
excite careful study and consideration of this subject on the 
part of friends of education. While the Commission is not pre- 
pared to make definite recommendations at this time, yet it is 
surprising what few changes in our laws would be necessary to 
effect a radical readjustment of school administration. It 
could be brought about, first, by the discontinuance of the 
present district school officers; second, by an increase in the 
number of township trustees of from one to five; third, con- 
ferring upon the five trustees, in addition to the powers and 
duties now conferred upon and required of them by law, all the 
powers and duties of district school boards as now or hereafter 
to be provided by law. Under this system the district school 
would remain as it is, only the business now pertaining to it 
would be transacted by the township board elected by the peo- 
ple, instead of by a district board elected by the people. This 
would certainly inconvenience no one. The only difference 
would be that the schools, instead of being managed by several 
boards, would have but one controlling agency. 

Increased responsibility tends to increased efficiency. The 
township system will therefore draw to the office of township 
trustee the men best qualified to fill it. With the responsibility 
of exclusive control of the schools of a township, the board 



Educational Commission Bulletin. 23 

would be compelled to systematize in order to economize. All 
that the township plan requires is that the control and manage- 
ment of the schools pass from the local boards to the township 
trustees, and the passing of this control will create no dis- 
turbance. 

The Commission earnestly recommends the careful study of 
this question. It believes that the proposition of a larger unit 
of school organization is fundamental and absolutely essential 
to the real progress and development of the schools of this 
state. 

8. EMPLOYMENT OF TEACHERS FOR LONGER PERIODS. 

An important cause contributing to the shortage of teach- 
ers, which is found everywhere throughout the United States, 
is the uncertainty of tenure of office. Really capable men and 
women are quite apt to leave the profession because of their 
objection to the annual and recurring uncertainty of reelection. 
This condition of affairs is undoubtedly responsible to a degree 
for the continual change in the personnel of the teaching force. 

A study of our best schools shows that there is a growing 
dislike to frequent change of teachers, and that the schools in 
which such changes are rare are, as a rule, better organized 
and more efficient. 

Under the Kansas law there seems to be no authority to em- 
ploy either superintendent or teacher for a longer period than 
one year. Believing that the profession of teaching would be 
materially increased in dignity and importance and that the 
schools themselves would be definitely helped if the tenure of 
office were made more certain and of longer duration, the Com- 
mission recommends that a law be enacted providing that 
boards of education in cities of the first, second and third class, 
and in county high schools, may contract with and hire qualified 
teachers, including superintendents, for a period not to exceed 
three years. 

It is also recommended that proper provision be made for the 
prompt discharge of incompetent teachers and superintendents. 

9. A CHANGE IN THE DATE OF ANNUAL SCHOOL MEETINGS. 

The various dates for annual school meetings for school dis- 
tricts organized under the different acts of the legislature lead 
to such endless confusion that a uniform date for the meeting 
of all schools operating under the district plan seems not only 



24 Educational Commission Bulletin. 

practicable but highly beneficial. Practically every session of 
the legislature has changed the date for the annual meeting of 
rural schools. In order to bring this matter to a uniform basis, 
the Commission has decided to recommend that a date in March 
be fixed for the annual meeting of all classes of schools. 

The Commission sets forth the following reasons for this 
change : 

1. A March meeting comes at a time when the people of 
rural communities are not so busily engaged with their farm 
work and can attend. 

2. Most of the schools are in session and school work and 
school interests are uppermost in the public thought. 

3. Country schools and school districts containing cities of 
the third class may employ their teachers and plan their work 
for the succeeding year at the same time and in the same man- 
ner as cities of the first and second class, and have the same op- 
portunity to have first choice of teachers now enjoyed by these 
cities. 

4. Public-school teachers may be employed earlier and thus 
have stronger incentives to attend summer training-schools, 
thereby increasing their efficiency in the work. 

5. The district meeting can vote the amount of money 
needed for the year, and the county clerk can apply such a levy 
to the valuation, when ascertained, as will produce the amount 
voted by the district. 

6. County superintendents will be able to secure the neces- 
sary reports from the districts and make the required report to 
the state superintendent of public instruction earlier in the 
year, thus giving him (the county superintendent) time to visit 
the schools at the opening of the school year, when his services 
are most needed. 

The principal objection urged heretofore against earlier an- 
nual meetings was the lack of a statement of the valuations by 
districts, which county clerks, as a rule, are unable to furnish 
earlier than rather late in June. Under the suggested plan an 
exact statement of valuations is unnecessary. The annual 
meeting determines the amount of money that will be required 
for the proposed school year, and it will be the duty of the 
clerk to certify the same to the county clerk, who, after valua- 
tions are ascertained, can easily determine the levy. Except 
for such change in the law as has been witnessed the present 
year, valuations do not vary materially from year to year, so 



Educational Commission Bulletin. 25. 

it would seem that the many advantages to be gained from an 
annual meeting held early in the year much more than offset 
any disadvantages that may be suggested. 

10. RAILROAD TAXATION. 

It seems to be generally conceded that under the present sys- 
tem the taxes paid by railroads are unjustly distributed. There 
have been, and perhaps still are, school districts where the 
railroad pays almost the entire expense of the school. The 
cases are numerous where a district containing a railroad can 
maintain nine months of school with a light tax, while an 
adjacent district of equal wealth except for the railroad has 
been able to sustain only a few months of school, and that with 
a maximum tax. If the railroad were supported solely by the 
residents of the school district through which it passes the 
present system might be justified on that ground, but such is 
not the case. The farmer living fifteen miles away from the 
railroad contributes just as much to the support of the railroad 
as the farmer living immediately adjacent to the track, pro- 
vided, of course, that the two farms are equally productive. 
The property lying adjacent to a town on the railroad must of 
course have its natural advantage. Its proximity to a shipping- 
station gives it of necessity greater value than similar land 
situated farther away; but there is no reason why to this nat- 
ural advantage should be added discrimination in the distribu- 
tion of the railroad tax. 

There is certainly an inherent and natural difference between 
railroad property and the other ordinary forms of property 
subject to taxation. Railroad property is in its very nature 
non-local. The section of track located in a particular school 
district is, taken by itself and disconnected from the track in 
other school districts, practically valueless. The value lies in 
the thing as a whole ; and the value of any particular section is 
given to it by all the people of the state. For example, the 
people of Reno county probably contribute as much to the value 
of the railroad track lying in Osage county as the people of 
Osage county do. 

Railroad tracks are in their nature non-local property. They 
might be called state property; and this fact would seem to 
justify and require that in the distribution of railroad taxes a 
change should be made from the present system. This appears, 
to the Commission to be a serious matter, and it is earnestly 



26 Educational Commission Bulletin. 

recommended that such changes be made in the law, and the 
constitution if necessary, as will allow an equitable distribution 
to all the people of the state of the large sums of money now 
annually paid by the railroads for the support of education. 

These remarks will apply to telegraph and pipe-lines and any 
other property non-local in its nature. 

11. ESCHEATS TO THE SCHOOL-FUND. 

All persons who have had occasion to observe the workings 
of the laws endeavoring to make effectual section 3, article 6 of 
the state constitution, relating to estates of persons dying with- 
out heirs or will, know how inadequate the present statutes are 
in the enforcement of the clear provisions of our constitution. 

The history of escheats seems to indicate that the permanent 
school-fund fails in many instances to secure much property 
that belongs to it under the provisions of the constitution. To 
remedy this deficiency the Commission will introduce an act 
seeking to make effectual section 3 of article 6 of the state con- 
stitution and to prescribe presumptions of title to certain 
classes and kinds of property, and to secure for the state and 
county school fund (1) the property and rights of persons dy- 
ing without heir or will; (2) all lost and abandoned property 
and rights, whether of individuals, of corporations or of mem- 
bers of incorporated companies; (3) all property and rights 
lapsed or forfeited other than for failure of money considera- 
tion; (4) all fines levied by the supreme court; and (5) all un- 
claimed moneys, fees and funds in the hands of any court or 
public officer; and to prescribe procedure to accomplish the 
foregoing ends. 

12. THE BARNES LAW. 

The placing of what is known as the Barnes law upon the 
statute-books of our state marked a most signal event in the 
history of secondary education. The importance of the meas- 
ure may be summed up as follows : 

1. It extends the county-high-school idea by maintaining 
more than one high school where one county high school could 
not be adopted. 

2. It provides free high-school facilities for all and relatively 
accessible to all. 

3. It removes the last remnant of the old tuition days in 
connection with the public schools, and provides equal high- 



Educational Commission Bulletin. 27 

school privileges. It opens up opportunities to secure an edu- 
cation to those who would be debarred by tuition from securing 
an education. 

4. It is confirmed by experience that by removing the bar- 
rier of tuition a very much larger proportion, even of those 
who are fairly well-to-do, will attend high school. 

5. In the two years of the operation of the law in the 
counties in which it was adopted, weak high schools have been 
strengthened and the enrolment in high schools has been vastly 
increased. Two years of experience under the Barnes law have 
amply demonstrated its merits and popularity. 

6. There are thousands of children now waiting to enter the 
high schools as soon as such privileges are granted. 

7. The entire county can maintain better high schools than 
can be maintained in any other way, with the consequence that 
the high schools of the county are very much strengthened. 

Notwithstanding these advantages the results of the recent 
election in many counties on the proposition "Shall we adopt 
the provisions of the Barnes law?" confirm the impression that 
the law as it now stands contains a number of unpopular 
features. Every consideration of the welfare of our youth tes- 
tifies to the necessity of ample provision for training beyond 
the grades. This the Barnes law, in its essence, provides. 
However, it is necessary that the objectionable features re- 
ferred to be removed, and it is seriously hoped that such 
amendments may be made to our present law as shall not only 
remove all opposition, but shall make it operative in every 
county in the state not already provided with a county high 
school. 

13. COMPULSORY EDUCATION. 

The compulsory education law enacted in 1903 has produced 
such excellent results that it needs but little consideration here. 
However, there are certain features of the law that should be 
strengthened. The Commission advises that the law be made 
to apply to all children between the eighth and sixteenth birth- 
days. Exceptions for a certain class of children whose ages 
are between the fifteenth and sixteenth birthdays, who are able 
to read and write the English language readily, and who are 
regularly and lawfully engaged in some useful and remunera- 
tive occupation for their own support, or for the support of 
those dependent upon them, might well be introduced. 



28 Educational Commission Bulletin. 

It is also recommended that pupils who are habitually truant,, 
or who are a menace to the best interests of the school, be 
treated as incorrigibles, and that the law for such be applied in 
their case. To make the law still more effective, it is further 
recommended that all officers and teachers of public, private 
and parochial schools be required to make and furnish all neces- 
sary reports for the proper enforcement of the law. Further 
provisions recommended for the strengthening of this law are : 
That reports to truant officers be made more promptly; that 
the number of days of notice required shall be reduced from 
five to two, and that the notice given shall be final for the term 
for the same class of offense. 

14. NORMAL COURSES IN HIGH SCHOOLS. 

It is a well-known fact that the majority of the teachers of" 
Kansas go into the work with little or no special preparation. 
A number, small, however, compared with the number of teach- 
ers in the state, attend some of our normal schools or colleges; 
but practically all the rural schools are in charge of teachers 
who have made no preparation except such as the academic 
studies give them. This is even more of- a detriment than ap- 
pears at first thought, for the graded schools, in which the 
greater part of the normal- and college-trained teachers are 
employed, are usually superintended by men of experience and 
special fitness for the work, while the rural teacher has no one 
to whom she can go for daily advice and help. 

It is the opinion of the Commission that this defect in our 
system can be partially remedied by the establishing of normal 
courses in more high schools. The success of the graduates of 
the four-year normal course in each of the twenty-one county 
high schools justifies the belief that this department could well 
be extended to the larger city high schools. It is believed that 
the power of granting a second-grade certificate to graduates 
of a four-years normal course should be given to such schools 
as sustain a course which meets the requirements of the State 
Board of Education as to studies pursued, number and qualifi- 
cations of teachers, equipment, length of term, and such other 
requirements as the State Board may make. In view of the 
fact that the Commission is asking for a law that after May 1, 
1911, will require practically every teacher to have some high- 
school work, the establishment of normal courses seems par- 
ticularly necessary. 



Educational Commission Bulletin. 29 

15. AGRICULTURE IN HIGH SCHOOLS. 

Without doubt, one of the greatest problems confronting the 
-American people is that of keeping the boys and girls on the 
farms. When we consider the marvelous growth of the cities, 
and the scarcity of farm help, the importance of this question 
becomes apparent. While there are, of course, many reasons 
for this condition, it is the opinion of the Commission that one 
important cause is the fact that so much of the work of our 
schools and colleges educates away from the farm rather than 
toward it. There seems no good reason why the schools should 
not give our boys and girls an elementary knowledge of farm- 
ing as well as of bookkeeping, teaching, or any other occupa- 
tion. In fact, considering the great lack of scientific knowledge 
upon this subject, it seems of even more importance at this 
time. There is also every reason to believe that as scientific 
farming becomes better understood the subject will receive 
more careful study, and that more of our young men and wo- 
men will remain in this most important of all occupations. 

For these reasons, the Commission advises that a law be 
passed requiring the elements of agriculture to be taught in all 
county high schools. This could well include elements of bot- 
any, seed selection, conservation of moisture, different systems 
of cultivation, farm bookkeeping, and other subjects of every- 
day value to the progressive farmer, as well as the closely allied 
subjects of manual training, domestic science and domestic art. 

16. SANITARY INSPECTION OF SCHOOLS. 

The Commission desires to record its strong approval of the 
action of the State Board of Health through its secretary, 
Doctor Crumbine, in his attempt to secure more perfect sani- 
tary conditions in our public buildings, and especially do we 
approve of this action as applied to public schools. We trust 
that such legislation may be brought about as shall insure 
thorough inspection of all school buildings with relation to their 
sanitary conditions. 

The Commission recognizes the vast importance of the re- 
cently inaugurated movement for the state-wide attempt to 
prevent the spread of tuberculosis, and recommends that any 
legislation necessary to the dissemination of the knowledge of 
how to prevent this dread disease through the schools be en- 
acted into law. 



30 Educational Commission Bulletin. 

17. REGULATIONS RELATIVE TO THE CONSTRUCTION OP 

SCHOOL BUILDINGS. 

Since the laws of Kansas fail to offer any legislation for the 
proper safeguarding of school buildings against fire, the Com- 
mission advises that this matter be thoroughly provided for so 
far as enactment of laws can accomplish the same. 

All doors in such buildings should be made to swing outward, 
and all double doors so arranged as to be operated simul- 
taneously from within, and all exits of buildings should remain 
unlocked while the school is in session. It would also seem that 
every story above the first should be provided with either two 
or more exits from the upper floors separate and distinct from 
the exits from the lower floors, or that they should be provided 
with sufficient and suitable fire-escapes, to be built of iron or 
steel. The tops of all furnaces should be covered with a certain 
amount of asbestos, and the tops of such furnaces should not 
be nearer than twelve inches to the woodwork above. 

For the purpose of the proper carrying out of such a law, it 
should be made the duty of the county superintendent to an- 
nually inspect school buildings in cities of the third class ; and 
in cities of the first and second class annual inspection should 
be made by designated officers. 

18. FIRE DRILLS. 

From time to time, following some unusually great loss by 
fire, the country is awakened to the need of better fire protec- 
tion, especially in public buildings and in schools. The Collin- 
wood fire horror aroused the whole country for the safety of its 
schools. Since that disaster boards of education have spent 
thousands of dollars in fire-escapes, fire-extinguishers and fire- 
proof construction; but these measures, imperative as they 
are, cannot give absolute protection. It has long been recog- 
nized that the casualties from panic were generally greater 
than from the fires themselves, and that in most cases prompt 
warning would enable pupils and teachers to get out of the 
building in safety if there were no stampede. An efficient fire 
drill will give the needed warning, and also such training in 
self-control under conditions of danger that the pupils will not 
become panic-stricken at the first alarm of fire. This measure 
affords the supremest protection, is the least expensive of all 
methods, and is at the same time universally available. Says 



Educational Commission Bulletin. 31 

the Hon. James L. Hughes, chief inspector of schools, Toronto, 
Canada : 

"More than thirty years ago, when a large number of chil- 
dren lost their lives in a school in St. Louis, I became convinced 
that one of the most important aims of teachers should be to 
train pupils everywhere so that it would be impossible to 
create a panic among them. If all the children in the St. Louis 
school had kept their seats no one would have been injured, as 
there was really no fire. The alarm of "fire" caused a panic 
and the pupils rushed for the exits. In the hurry one child 
fell and the others tripped over him; and the panic-stricken 
crowd, rushing from imaginary danger, fell headlong, till the 
lower hall was filled, and over thirty were crushed to death by 
the weight of their companions. This led me to recommend 
to the board of education in Toronto to prescribe regular fire 
drills in all our schools, not for the purpose of getting children 
out rapidly in case of fire, but to train them to be calm and 
self-possessed in conditions of danger. I am convinced that 
most of the lives lost in the burning theaters and public halls 
are sacrificed because of panic. It is well to have fire-proof 
buildings; it is better to have panic-proof children and calm, 
self-possessed men and women. 

"EFFICACY OF DRILLS. 

"We have had seven fires in our schools in Toronto during the 
past thirty-three years, and in not one of these cases was there 
any tendency to a panic. In three cases the halls were filled 
with dense smoke, and in one case the flames could be seen from 
the stairway, but the children of all ages marched in fours 
steadily as if on parade. In another case the flames shot up 
through a hole in the floor between two rows of desks. The 
flames rose higher than the children's heads. Though they 
were only about nine years of age, and some of them might 
easily have put out their hands and reached the flame, no one 
screamed or became excited. The teacher sent word to the 
principal to ring the 'alarm,' and the pupils of the class waited 
for the regular signal, and stood at the door of their room 
awaiting their turn, as at an ordinary fire drill. 

"THE FUNDAMENTAL PRINCIPLES. 

"Three fundamental principles should be kept in mind in 
arranging for a system of fire drills : 

"1. The supreme aim of the drill is to prevent the possibility 
of a panic. 

"2. The children should go out as slowly, or, better, a little 
more slowly, than usual. 

"3. The children should act automatically, without any 
word of command from any teacher, but in response to the 
gong signals." 

The Commission will recommend to the legislature the enact- 



32 Educational Commission Bulletin. 

ment of a law, therefore, providing that in all cities of the first, 
second and third class school boards shall be authorized and 
directed to prescribe definite fire drills, to be given at least 
twice each month in every school in their respective districts. 

19. COUNTY DIPLOMA EXAMINATION. 

The county diploma examination was instituted with a two- 
fold purpose in view — first, to arouse and sustain the ambition 
of the pupil in the country school by giving him the same goal 
as that set up for his city cousins; that is, graduation day; 
second, to furnish him with a certificate of work done such as 
would entitle him to admission to high schools; here again to 
offer him only just such opportunity as is given the pupil in 
the city schools upon completion of the eighth grade. But be- 
cause of the fact that the system grew up before there was a 
uniform course of study adopted for the rural schools of the 
state, and because there was not, and is not now, uniformity 
in the manner of conducting these examinations and of grading 
the manuscripts, many city superintendents and high-school 
principals have refused to accept county diplomas as certifi- 
cates of admission to their high schools on the ground that 
diplomas obtained under the present system, or rather lack of 
system, of county diploma examinations do not furnish suffi- 
cient evidence that pupils are prepared to do high-school work. 

Thus one of the two very purposes of the examination is de- 
feated. And this fact not only works injustice and hardship 
upon the pupils in the country schools, but it also inflicts posi- 
tive injury upon them. For when the pupils know that receiv- 
ing the diploma is all that county graduation will mean to 
them, and that the high schools will still remain closed against 
them, the graduation will come more and more to be what it 
ought not to be — an end, and less and less what it ought to be — 
a means whereby to enter new fields of knowledge. 

In order that the unsatisfactory and unnecessary conditions 
here set forth may be remedied and equal educational oppor- 
tunities be given to all, so far as this is possible, your Commis- 
sion would recommend that the time, place and manner of hold- 
ing county diploma examinations be made uniform throughout 
the state, and to this end we would respectfully submit the 
following specific suggestions: First, that the examinations 
be held throughout the state on the second and third Saturdays 
<of April each year, half of the examination to be given each 



Educational Commission Bulletin. 3& 

day ; second, that the examinations shall be held at such places 
in each county as the superintendent thereof may designate, 
the number not to exceed the number of congressional town- 
ships in the county ; third, each such examination shall be con- 
ducted by some competent person appointed by the county 
superintendent of the county in which such examination is 
held, said person to receive the sum of two dollars per day as 
compensation for such service; fourth, the questions for all 
county diploma examinations shall be prepared by a committee 
of county superintendents appointed by the state superintend- 
ent and working under his supervision, such questions to be 
based upon the course of study adopted for the rural schools of 
the state ; fifth, the manuscripts shall be graded by the county 
teachers' examining board in each county, and the members of 
said board shall receive three dollars per day each for not to 
exceed eight days as compensation for such service; sixth, to 
secure a diploma an average of at least seventy-five per cent, 
must be attained in all the common branches, with no grade 
less than sixty per cent, in any subject; seventh, no grades shall 
be carried for more than one year, and only those of eighty per 
cent, or better may be carried at all ; eighth, a diploma obtained 
as the result of such an examination shall entitle the holder to 
admission to any high school in the state ; ninth, the necessary 
expenses of holding this examination in each county shall be 
paid out of the general funds of the county, upon the order of 
the board of county commissioners, said expenses having first 
been certified to by the county superintendent. 

20. CLERKS FOR COUNTY SUPERINTENDENTS, AND CLOSER 
SUPERVISION OF COUNTRY SCHOOLS. 

The county superintendent finds his broadest and most help- 
ful field of operation in the actual supervision of school work. 
To go out into the schools of his county and spend not alone 
an hour, but half a day, or even a whole day, in careful ob- 
servation, in the giving of timely advice, and of assisting the 
teacher to solve the problems that confront her, is of infinitely 
more value than the mere routine work of the office itself. A 
really helpful superintendent, because of experience, of wide 
range of observation and a helpful spirit, is often able to work 
wonders in a school. 

Again, to be able to go out into the various neighborhoods 
and become personally acquainted with the patrons, to learn at. 



34 Educational Commission Bulletin. 

first hand the needs of the district and to see personally that 
plans developed for the good of the schools are put into opera- 
tion, constitutes an important part of the superintendent's 
work. Perhaps the chief advantage of city and graded schools 
lies in the closer supervision ; in the opportunity that comes to 
the superintendent for daily visits to the various schools, and 
because of the close and frequent inspection he is able to make. 

The county superintendent, because of the long distances he 
is forced to travel, and more particularly because of the many 
details of office work that claim his attention and time, is able 
usually to make but one or two visits at the most during the 
year to a given school, and then too frequently remains but a 
very short time. The law itself requires his presence in each 
schoolroom not more than "one hour once each term of six 
months." 

Having in mind constantly a desire to recommend such legis- 
lation as will improve and render more effective our common 
schools, the Commission urges upon the legislature the passage 
of a law that will relieve certain superintendents for a portion 
of the year of the purely mechanical work of the office and that 
shall compel a larger amount of time to be devoted to actual 
supervision of schools. It is hoped that legislation may be had 
providing a clerk for all county superintendents who have 
from 75 to 100 teachers under their supervision, for at least 
two months each year ; and for those superintendents who have 
100 or more teachers a clerk for at least three months each 
year. This officer should attend to all matters pertaining to 
the purely clerical work of the office; examine, tabulate and 
file the numerous reports which each superintendent receives 
from his teachers, and attend to the general correspondence of 
the office, so that the superintendent's time can be given en- 
tirely to visiting and supervising schools during the week. 

Such a law should provide that superintendents so supplied 
with clerks should be required to spend all of their time, when 
not necessarily employed in other duties, in the work of actual 
supervision of the schools under their charge. In this state 
there are twenty county superintendents who have more than 
75 and less than 100 teachers under their supervision, and 
fifty-four counties in which there are more than 100 teachers 
in the rural schools. 

To visit and observe the work of all the schools, correcting 
any deficiencies that may exist; to encourage the beginners in 



Educational Commission Bulletin. 35 

teaching; to hear and adjust the difficulties that arise in many 
school districts ; to attend the educational meetings and teach- 
ers' associations which the law requires, and to keep the office 
open each Saturday, together with the mass of correspondence 
that is sure to accumulate, is a task greater than can be prop- 
erly performed by any one county superintendent. 

It must be borne in mind that the county superintendent is 
something more than a school visitor. He should have time 
enough in each school to know that the work is up to the stand- 
ard and properly done; that proper discipline is maintained, 
sanitary conditions observed and the school properly graded. 
Any law that makes possible the discharge of the nigher and 
real duties of the superintendent — namely, close, intelligent and 
helpful supervision — will be of the greatest value to our rural 
schools. 

21. SCHOOL LIBRARIES AND EQUIPMENT. 

It is universally conceded that, next to the home, no other 
factor> exercises so great an influence in giving direction and 
trend to a child's life as the reading of good books. A well- 
selected library should be regarded as a necessary part of the 
equipment of every school. The law upon our statute-books 
permits the levying of a small amount annually for library 
purposes. Unfortunately, too many districts fail to avail them- 
selves of this opportunity to surround their children with the 
influence of good books. To the end that all schools may be 
supplied with suitable and well-selected libraries, the Commis- 
sion recommends the passage of an act providing for the estab- 
lishment of a library of not less than fifty volumes in every 
school district ; such libraries to be added to from year to year 
until it reaches at least a minimum of fifty volumes. 

For the purpose of assisting in the selection of books there 
should be established a State School Library Board, to be com- 
posed of four persons appointed by the state superintendent of 
public instruction, who, together with himself as chairman 
ex officio, shall constitute a library board, whose duty it shall 
be to prepare lists of books suitable for school libraries and 
furnish these to the various school districts of the state. Such 
a board, it is fair to presume, would be composed of persons 
especially qualified to select books for the youth, and in this 
way much of the light and worthless matter frequently found in 
school libraries could be eliminated. Such a board might well 



36 Educational Commission Bulletin. 

be composed of a representative of the cities of the first, second 
and third class and a county superintendent. Their duties 
could also well include the selection of the State Teachers* 
Reading Circle books. 

APPARATUS. 

Schoolroom apparatus is indifferently supplied in many of 
the schools of the state. In every other line of industry the 
implements have been improved and kept up to date. School 1 
teachers are expected to accomplish the work in a better man- 
ner than ever before, and yet they are not always supplied 
with the necessary schoolroom equipment to accomplish this 
result. 

The legislature will be asked to enact a measure providing 
for a small uniform appropriation each year by every school 
district in the state to provide for the purchase of certain 
named schoolroom apparatus, if the district is not already sup- 
plied. In this manner, in four or five years, every school will 
be supplied with such necessary apparatus and equipment as a 
dictionary, globe, maps and reference works. This will aid in 
making the work of the schoolroom more thorough and prac- 
tical. It can be done by this means with the slightest possible 
increase in the expense of the school. 

22. TAKE THE OFFICE OF COUNTY SUPERINTENDENT OUT 

OF POLITICS. 

To those who have given the matter serious and careful at- 
tention it has long been a matter of regret that the supervision 
of our rural schools should in so great a measure be subject to 
the caprice or the self-interest of the so-called practical poli- 
ticians. While the office of county superintendent has and 
should have neither political significance nor political per- 
quisites, it has all too frequently been made to serve the ex- 
igencies of politics ; been handed over to some faithful follower 
by a political boss as the reward for political allegiance and 
political service, or been given to some educationally unde- 
sirable candidate because his geographical location in the 
county would "help the rest of the ticket." 

The primary election law has remedied some of the evils at- 
tendant upon the selection of this officer. But so long as he is 
nominated and elected as a partisan, the one school officer who 
is of vital importance to the rural schools will be chosen as no* 



Educational Commission Bulletin. 37 

other class of school men are chosen, either in this or in 
*any other state; that is, with reference to his political affilia- 
tion and activity, instead of solely upon his merits and stand- 
ing as a school man. And worse still, the two-term rule, so 
firmly established by custom in many counties, will continue 
to make the tenure short and uncertain; will continue to drive 
really competent men from office at the end of four years. And 
naturally this would happen just at a time when their labors 
would be beginning to bear fruit in better organization, and in 
wider acquaintanceship with their teaching force and with the 
needs of their schools. Such changes are, of course, wholly 
indefensible, because they are made in utter disregard of faith- 
ful and efficient service, and rest entirely upon the political 
rallying-cry of "Pass the pie around" ; a basis which even the 
most corrupt and boss-ridden cities do not tolerate in the selec- 
tion of their school superintendents. 

The county superintendency is also, above any other county 
office, peculiarly susceptible to the consequences of local quar- 
rels and personal grudges. The county superintendent, by 
virtue of his duty to hear and determine questions of changes 
in school district boundaries, and to act as arbiter between 
teachers and school boards in cases of friction between them, 
must in the very nature of things incur the enmity of one 
side or the other, however just and righteous his decisions 
may be. He is also rightly or wrongly held responsible for all 
certificates issued or withheld in his county; and this often 
brings him the ill will of dissatisfied and disappointed appli- 
cants. And since it is a practically universal trait of human 
nature that we dislike those we dislike more than we like those 
we like, it frequently happens that the more conscientious and 
efficient a county superintendent is in the performance of his 
duty the more certain he is at the end of his first or second, 
or at most his third, term to fall a victim to neighborhood 
differences and personal spite, if these can be brought into 
conjunction with partisan politics; whereas, if some means 
could be devised for his election which would render this com- 
bination of personal and political elements against him im- 
possible, efficiency and experience would become the determin- 
ing factors in his selection, and the children of the rural schools 
would cease to be the innocent victims of political prejudice and 
personal feeling in the matter of their supervision. With 
a view to accomplishing this very desirable reform your Com- 



38 Educational Commission Bulletin. 

mission desires to call attention to three plans which are 
worthy of careful consideration as offering means of remedying 
the existing evil. 

The first two of these involve an amendment to the constitu- 
tion of the state, while the third may be accomplished merely 
by changes in existing statutes. 

The first plan is one that has been suggested to your Com- 
mission by a number of the practical school men in the state. 
It would provide for the election of the county superintendent 
for a term of four years by the legally qualified school voters, 
in the annual school meetings in each county held first preced- 
ing the expiration of the term of office of the county superin- 
tendent then serving. This method has the advantages of re- 
moving the office from politics; of placing it in the hands of 
those directly and evidently interested in school affairs, and of 
giving women an equal voice with men in the choice of this 
officer. 

By the provisions of the second plan the county superin- 
tendent would be elected by a convention of the members of the 
various school district boards in each county. This method 
offers the threefold merit of removing the office from politics ; 
of placing it directly in the hands of the school officers of the 
county, and of affording an opportunity for the school officers 
themselves to come into closer touch with each other. In 
Pennsylvania, for example, the school boards of each county 
hold an annual convention, and triennially elect a county super- 
intendent for the ensuing three years. In reply to a letter of 
inquiry upon this subject, Superintendent Schaeffer, who has 
served something like a quarter of a century as state superin- 
tendent of Pennsylvania, and who has had wide opportunity 
for observation, says: "We do not believe there is a better 
plan." 

The remaining plan to which your Commission would re- 
spectfully call attention is one which involves only changes in 
the primary and general election laws in so far as they refer to 
the office of county superintendent, and in the following par- 
ticulars : First, the candidates for county superintendent shall 
be the two legally qualified persons receiving the highest num- 
ber of votes for such nomination cast by the legal school voters 
in each county in the annual school meetings next preceding 
the biennial general election; second, the names of two said 
persons shall be printed in the independent column on the 



Educational Commission Bulletin. 39> 

general election ballot; provided, that nothing in this pro- 
vision shall prevent the name of any other candidate from ap- 
pearing in the independent column in the manner already pre- 
scribed by law. The merits of this plan are, first of all, as it 
was of the others suggested, the removal of the office from 
politics; second, women as well as men will be given a voice 
in choosing the candidates for the office, in which both as 
parents are equally concerned; third, the nominations will be 
made by those persons who are sufficiently interested in school 
matters to attend the annual meetings; fourth, the annual 
meetings themselves will be better attended because of this ad- 
ditional duty and responsibility, and the increased interest in 
them will redound to the benefit of the schools ; and, finally, no 
constitutional amendment will be necessary to enable the fore- 
going provisions to become effective. For all the reasons here 
last enumerated, therefore, your Commission would recom- 
mend this plan as the most feasible and most desirable of the 
three. 

23. COUNTY SUPERINTENDENTS' ANNUAL MEETING. 

For two years the county superintendents have been invited 
to meet in annual session in August at Topeka. The results of 
these meetings have been felt in every school district repre- 
sented by those in attendance. More than half of the superin- 
tendents were enrolled at each of the meetings mentioned. 
There questions directly affecting the administration of our 
rural schools were discussed and plans used by various super- 
intendents were mentioned, with the result that each superin- 
tendent found an opportunity to learn something of the meth- 
ods and operations of his fellow superintendent. It is believed 
that no single means will contribute more directly to the up- 
building of our country schools and the strengthening of county 
superintendents than the continuation of these annual meet- 
ings. 

Since county superintendents receive but a very modest sal- 
ary, and as they represent as a class a body of earnest workers 
who are but little able to meet the expense necessary for at- 
tendance at such a meeting, it is recommended that the legisla- 
ture enact into law a measure providing that all county super- 
intendents in attendance at such annual meetings shall, upon 
presentation of a statement signed by the state superintendent 
testifying to their attendance, be paid on the order of county 



40 Educational Commission Bulletin. 

commissioners of their respective counties the actual expenses, 
including railroad fare and hotel bill, while in attendance at 
such meetings. 

Such a measure would mean but a trifling expense to the 
several counties, and would insure the perpetuation of an an- 
nual meeting at which 105 county superintendents would be 
present. The possibilities for good to our school system grow- 
ing out of this simple enactment are so obvious as to require 
no further statement. 

24. A UNIFORM LAW RELATING TO SIZE AND ORGANIZATION 
OF BOARDS OF EDUCATION. 

A study of the laws relative to boards of education in cities 
of the first and second class reveals a great want of unformity 
and the fact that almost every city seems to be struggling along 
under a system of its own. 

In cities of the first class having a population of 35,000 or 
over, as shown by the United States census of 1890, the board 
of education consists of six members, one from each ward, 
elected at large for a term of three years. Under the peculiar 
construction of this law its terms apply to one city only, Kan- 
sas City, Kan. In all other cities of the first class having not 
to exceed four wards, the boards of education consist of three 
members from each ward, elected at large for a term of three 
years. 

In all cities of the first class, excepting Kansas City, Kan., 
having over four wards, the board of education consists of 
two members from each ward, elected at large for a term of 
two years. 

In cities of the second class having a population of not more 
than 10,000 inhabitants, the board of education consists of two 
members from each ward, elected by wards for a term of two 
years. 

In cities of the second class having a population of over 
10,000 inhabitants, the board of education consists of six mem- 
bers, elected at large for a term of three years, two being 
elected each year. 

In cities of the third class the same law applies as in rural 
schools, namely, there are three members of the board, elected 
at large, and each serving for a period of three years. 

To avoid the confusion and lack of harmony that our present 
system, or want of it, brings about, as indicated above, the 



Educational Commission Bulletin. 41 

Commission recommends the enactment of a law that shall 
apply to all cities of the first and second class. The specific 
recommendation is as follows: That boards of education in 
cities of the first and second class shall consist of six mem- 
bers; that each ward shall have at least one representative, 
and that all members of boards of education shall be nominated 
and elected at large. 

The argument in favor of such recommendation is not alone 
that of a uniform manner of selection, but it is believed that 
a body of not more than six members is likely to be a more 
effective agency in administering the school affairs of a com- 
munity than a larger number could possibly be. It is also felt 
that the nomination and election in the manner recommended 
would insure a broader outlook in regard to the schools and 
would tend to eliminate the individual interests which fre- 
quently are pressed at the expense of the community as a 
whole. Experience seems to demonstrate that a nomination 
and election by all the people would secure a better and more 
capable class of men. 

25. SCHOOL TEXT-BOOKS, UNIFORMITY. 

More than ten years of experience have amply vindicated the 
general provisions of the present text-book law. State uni- 
formity has made possible a state-wide course of study, and, 
consequently, a more unified school system than is possible 
where each city and each school district is free to choose its 
own text-books. Pupils may transfer from one school to an- 
other with ease, and without a break in the continuity of their 
school work. Time and vexation are thus saved teacher, pupil 
and patron. Nor does transfer from one school to another now 
involve, as once it did, the expense of a partial or complete 
change of books ; for the same books are used in the correspond- 
ing grades in all the schools of the state. 

As conditions were before the present law went into effect 
any district school board or city board of education could 
select such books as it saw fit and change them as often as it 
chose. This gave wide-spread opportunity for questionable 
methods in the selection of books ; subjected school authorities 
to the constant importunities of rival book men, and made 
patrons and pupils the victims of frequent and unnecessary 
changes. And even when such changes were needed and were 
conscientiously made, the books selected were frequently no 



42 Educational Commission Bulletin. 

better than the ones displaced, because, in the very nature of 
things, many of the school boards upon whom the choice de- 
volved had no special fitness for the task ; were, in fact, wholly 
incompetent properly to perform it. Under the present law a 
change in books cannot be made oftener than every five years. 
The possibility of changing books at the end of some such 
period is necessary because new developments and new dis- 
coveries render texts in some subjects out of date after a 
reasonable time, and either they must be revised or new ones 
written. Books, however, which are not unsatisfactory or 
obsolescent may be readopted from period to period ; and thus 
it happens that since the present law went into effect there has 
never been a complete change of text-books at the close of any 
five-year period. In this way the cost of a change may be re- 
duced to the minimum necessary to keep the books up to date. 
Moreover, if the governor faithfully performs his duty the 
selection of books is now placed in the hands of experts whose 
educational experience and personal standing should be a 
guaranty of a more conscientious and discriminating choice 
than could be attained in any other way. And certainly this is 
a much more sensible and scientific way of selecting books 
than the method formerly followed, or than any method where- 
by the choice is left wholly or largely in the hands of laymen. 

The state uniformity law has not only wrought a great 
financial saving by minimizing the changing of text-books, 
but it has also served to reduce greatly the initial cost of the 
books. It is one of the laws of commerce that commodities 
can be produced and sold more cheaply in large quantities and 
when the demand can be approximately foretold than they 
can when they must be distributed over a wide area and placed 
with an uncertain and fluctuating trade. This being the case, 
the entire text-book business of a great state like Kansas be- 
comes the object of keenest competition. It is true that when 
the present law went into effect some of the leading publishers 
declared the schedule of prices entirely too low, and at the first 
letting of contracts many of them — in fact most of them — re- 
fused to bid. But books were obtained at the prices fixed, with 
the result that at the more recent lettings almost every impor- 
tant publishing house in the United States has submitted books 
and striven keenly for the business. 

That the price of school-books in Kansas has been reduced 
one-third, and in some instances even one-half, as a result of 



Educational Commission Bulletin. 43 

the law, no one can deny. Some who know the prices paid for 
books in other states have marveled that we could get them as 
cheaply as we do. And certain publishers, for reasons of their 
own, and which are sufficiently obvious, have been at pains to 
declare that they could not submit their best books. These 
facts have led to the charge that only inferior books have been 
secured. The fact remains, however, that the Appleton's 
Readers, to take one illustration, were widely used in Kansas 
before the uniform text-book law went into operation. Dur- 
ing the five-year period just past they were the state adopted 
readers; and they are still used in some parts of the United 
States. Certainly they were not different readers while being 
used under state uniformity from what they were before that 
time, or from what they are now ; and yet they were furnished 
at practically one-half the former price. This statement may 
meet with the assertion that an inferior edition was made es- 
pecially to meet the conditions in Kansas. Some such declara- 
tion is necessary on the part of publishers, at least, in order 
that they may maintain prices in other states. But here again 
the fact is that the readers in question were better made me- 
chanically when used under the uniformity law than they had 
been before, because the law required that they be bound in 
cloth, whereas before that time the entire series, except the 
fifth reader, had been bound in boards. 

Again, the Wentworth's algebra in use during the last five- 
year period had stood the test of time, and proved its popu- 
larity before its adoption in Kansas, while a number of the 
present state adoptions, although most of them are compara- 
tively new books, have met with a favorable reception and an 
extensive and extending use outside of Kansas at a higher 
price. 

These illustrations are sufficient to show that good books are 
submitted and can be obtained under the law. It is doubtless 
true that the best books are not submitted in some branches. 
But it is also true that the keen competition for a state-wide 
business raises the average quality of the books to a higher level 
than could be obtained even at a much higher price by any other 
method. And not only is this true, but it is also a fact that 
the average quality of the books now in use in Kansas is higher 
than it was before the state uniformity law went into effect, 
because, even at the much higher prices then prevailing, pub- 
lishers did not submit their best books if they could secure the 



44 Educational Commission Bulletin. 

adoption of inferior ones ; and this for the very evident reason 
that inferior books meant greater profits. And, as adoptions 
were then made, it was comparatively easy for adroit or un- 
scrupulous agents to secure the adoption of many poor books. 

The one vital question involved in the book business in Kan- 
sas under the present law is the question of common honesty 
on the part of the publishers and the adopting authorities. If 
this quality exists there need be no complaint concerning the 
law. If it does not exist no text-book law can remedy the evil. 

While it is, therefore, the sense of your Commission that the 
price of our text-books is as low as satisfactory text-books 
could possibly be obtained for under any system, and yet not too 
low to enable good books to be secured, nevertheless we believe 
that there should be some slight readjustments in the schedule 
of prices — a raising in certain cases and a lowering in others — 
whereby better books may be obtained in some subjects without 
materially increasing the cost of the books as a whole. The 
prices which should be increased are those of books in which 
colored illustrations are desirable, as the first reader; books 
of an especially technical or scientific character, as those in 
physics and botany; and books which in addition to a knowl- 
edge of the subject require particular literary skill in their 
preparation, as the United States history. We would also 
recommend that an elementary United States history be added 
to the list of state texts and that the astronomy and general 
history be eliminated from said list. We believe the price of 
the mental arithmetic and possibly one or two others might be 
reduced without detriment. 

In order that there may be no delay in supplying all the 
schools of the state with books after a new adoption, we would 
recommend that the law be amended to provide for the selec- 
tion of books one year in advance of the time when they shall 
be introduced into the schools. We believe such a provision 
would be much more satisfactory to publishers, dealers and 
patrons alike than is the present one. 

In connection with the general subject of text-book legisla- 
tion it may be interesting to recall the fact that some time 
after the present Kansas text-book law went into effect it was 
enacted, substantially without amendment, in Indiana. And 
it ought to be instructive to know how the law has been re- 
ceived there. As the best evidence upon this point the follow- 
ing quotation from a recent letter written by State Superin- 



Educational Commission Bulletin. 45 

tendent Cotton, of that state, is submitted: "Our uniform 
text-book law gives general satisfaction. However, there are 
some features of it which need to be revised. The prices for 
primers, first and second readers are too low to enable us to 
get the best illustrations in our texts. The subject-matter is 
just as good as that found in any primers or readers in the 
country, but I fear we do not get the best illustrations always. 
It is practically impossible for us to make a change in the law 
in this state." 

26. MISCELLANEOUS. 

It is impracticable to set forth at length all the matters under 
consideration by the Commission; therefore the following are 
grouped as further subjects that the Commission will urge 
upon the attention of the legislature : 

1. Powers should be granted boards of education to condemn 
■one block in incorporated cities, and five acres in other school 
districts, for school purposes, when necessary. 

2. A provision of law should be enacted requiring superin- 
tendents of schools in cities of the first and second class, or the 
principals of county high schools, to make such reports as the 
state superintendent of public instruction may require, and at 
the close of the term each year to make such annual reports to 
the state superintendent of public instruction as may be re- 
quired, and the last monthly salary of such officer should be 
withheld until such report is made. 

3. A provision should be enacted permitting territory out- 
side city limits of any city of the first class, but adjacent there- 
to, to be attached to such city for school purposes upon applica- 
tion to the board of education by a majority of the electors of 
such adjacent territory. 

4. A more definite statement of law looking to division of 
property when a new district is formed in whole or in part 
from one or more districts possessed of a schoolhouse, or en- 
titled to any other property, is necessary. 

5. A law providing that teachers of private, denominational 
or parochial schools shall report to the superintendent of the 
county in which situated, at the end of each school year, the 
length of term, the number of teachers, the enrolment, the 
-average daily attendance, reporting males and females sep- 
arately, is a much needed addition to our school regulations. 
These provisions should also apply to model schools in the 



46 Educational Commission Bulletin. 

normal departments of our State Normal and the colleges of 
the state. 

6. It is also recommended that the law now on the statute- 
books providing that parents living three miles or more from 
the school may receive for transportation of their children pay 
for 100 days of any term, be so changed as to permit payment 
for the entire term. 

7. It will also be recommended that all districts and city 
boards of education be permitted to pay a reasonable amount 
for the taking of the school census. 

8. It is also recommended that a small fee be charged for 
all state and institute certificates issued from the office of the 
state superintendent. 

9. At present there is no law requiring any scholastic quali- 
fications for the position of city superintendent. It is believed 
that certain qualifications should be required. 

10. A provision requiring graduates of the normal course 
of county high schools to attend a county institute should be 
enacted. 

11. Certain authority should be conferred upon boards of 
education to regulate the age and time at which children may 
enter school. 

12. A recommendation will be made that a law be enacted 
fixing certain office supplies that county commissioners shall 
furnish county superintendents; this to include payment for 
needed printing of circular letters and blank forms for reports 
of teachers, postage, etc. 

13. Minimum Salary : The history of those states in which 
a minimum salary law prevails encourages the Commission to 
make certain recommendations. To the end that a better and 
a more permanent class of teachers may be secured, it is be- 
lieved that the enactment of a law providing that the remuner- 
ation of any public-school teacher shall not be less than forty 
dollars per month would result in great advantage to our 
schools. 

14. Physical Examination: Legislation should be had pro- 
viding for physical examination of children so far as it relates 
to hearing and sight. Some very simple tests have been 
worked out by experts whereby any teacher can determine 
whether the organs of hearing and sight are in a normal con- 
dition. To detect this at an early period in the child's life is of 



Educational Commission Bulletin. 



47 



infinite importance to the child, and also has an important 
bearing upon the history of the child in its school relations. 
When the teacher ascertains that the child has defects of this 
character, she is in a position to bestow certain care with re- 
spect to position in the room, etc., that will add greatly to the 
comfort and progress of the pupil. 



jy 



LIBRARY OF CONGRESS 




